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Archived Content Information Archivée Dans Le Archived Content Information identified as archived on the Web is for reference, research or record-keeping purposes. It has not been altered or updated after the date of archiving. Web pages that are archived on the Web are not subject to the Government of Canada Web Standards. As per the Communications Policy of the Government of Canada, you can request alternate formats on the "Contact Us" page. Information archivée dans le Web Information archivée dans le Web à des fins de consultation, de recherche ou de tenue de documents. Cette dernière n’a aucunement été modifiée ni mise à jour depuis sa date de mise en archive. Les pages archivées dans le Web ne sont pas assujetties aux normes qui s’appliquent aux sites Web du gouvernement du Canada. Conformément à la Politique de communication du gouvernement du Canada, vous pouvez demander de recevoir cette information dans tout autre format de rechange à la page « Contactez-nous ». CANADIAN FORCES COLLEGE / COLLÈGE DES FORCES CANADIENNES NSSC 3 / CESN 3 SEMINAR 1 / SÉMINAIRE 1 DND’s RENEWAL: A POLITICAL OR A BUREAUCRATIC INITIATIVE By /par Mr. René LaRose This paper was written by a student attending La présente étude a été rédigée par un stagiaire the Canadian Forces College in fulfilment of one du Collège des Forces canadiennes pour of the requirements of the Course of Studies. satisfaire à l'une des exigences du cours. The paper is a scholastic document, and thus L'étude est un document qui se rapporte au contains facts and opinions which the author cours et contient donc des faits et des opinions alone considered appropriate and correct for que seul l'auteur considère appropriés et the subject. It does not necessarily reflect the convenables au sujet. Elle ne reflète pas policy or the opinion of any agency, including nécessairement la politique ou l'opinion d'un the Government of Canada and the Canadian organisme quelconque, y compris le Department of National Defence. This paper gouvernement du Canada et le ministère de la may not be released, quoted or copied except Défense nationale du Canada. Il est défendu de with the express permission of the Canadian diffuser, de citer ou de reproduire cette étude Department of National Defence. sans la permission expresse du ministère de la Défense nationale . ABSTRACT This paper argues the need for the Department of National Defence’s bureaucracy to take the lead for the resolution of the expectations-resources gap that has developed in Canadian defence affairs. After having assessed the magnitude of this expectations- resources gap, it is demonstrated that only a Cabinet level decision can resolve the issue. However, an assessment of the environment shows no apparent stimulus that could motivate Cabinet to take a decisive action to resolve this gap. After looking at the options available to Cabinet, the status quo appears as the only viable approach for Cabinet to take. This means that important decisions will only be made on a case by case basis and that the Department of National Defence (DND) will not get any significant guidance for the hard choices to be made to resolve the issue. Hence, the need for DND’s bureaucracy to take the lead and to propose capability options for debate in both political and domestic forums. After having considered the nature and state of the Canadian domestic political environment, this paper concludes that only a co-ordinated bureaucratic initiative from DND’s senior leadership will lead to a debate at the appropriate level and consequently, will lead Cabinet to resolve the issue. DND’s RENEWAL: A POLITICAL OR A BUREAUCRATIC INITIATIVE Introduction The world has changed. The highly predictable bipolar world experienced during the Cold War period has been replaced by a world where regional stability concerns and intrastate conflicts dominate the agenda. The very powerful nuclear threat, which once ensured global stability, has been replaced by the more unpredictable asymmetric threats at the top of the security priority list of Canadians. Thanks to advances in information technologies, Canadians and their political masters can now observe and react to world events as they happen in the comfort of their own living rooms. The globalisation trend also modifies the global socio-economic map and poses new challenges to states in their ability to exercise sovereignty. However, something has yet to change. Despite all efforts made, so far, by the Canadian Department of National Defence (DND) since the end of the Cold War, there still remains a gap between the capabilities that DND tries to maintain and renew according to future expectations, and the resources available for doing so – the expectations-resources gap. Since government sets both, expectations through policy papers and decisions, and resources through budgets, the initiative to resolve the issue must reside within the government itself. Even after having gone through a relatively good economical period and having turned deficits into surplus, the Canadian government has yet to come up with a solution to resolve this gap. 1 DND is still struggling to maintain a minimum viable capability, stretched to the limit by unending concurrent operational deployments, while looking at ways to deal with the challenge posed by its renewal in the context of the Revolution in Military Affairs and other interoperability issues. If DND wants to make progress and the political executive is not in a position to initiate the first steps towards the required decision, then DND’s bureaucracy must be prepared to take the lead. Political executive decision will require either a perceived incentive or at least no major disincentive to do so. First, the issue must be legitimate and brought to the attention of the right decision- making level for action to take place. Then, the environment that influences the decision- makers must be examined for any critical factors which could force the decision. Finally, if there is no overriding imperative, government’s options will have to be looked at for any comparative advantage as seen from the eyes of the decision-makers. It is only then, after having assessed how government is going to handle the issue, that DND can decide on a strategy based on whether or nor the process needs to be initiated from its own bureaucracy. Assessing whose initiative it is to resolve the current defence expectations- resources gap is the first step towards resolving it. This paper argues that, because of the state of current defence policy-making environments, the Department of National Defence’s bureaucracy has no other choice than to take the lead for the resolution of the expectations-resources gap that has developed in Canadian defence affairs. Based on lack of incentive and the current environmental situation, the Cabinet is most likely to 2 maintain status quo and leave DND with the challenge to make progress on a case by case basis. However, DND has means at its disposal to influence the nature of the debate in both political and domestic forums. A co-ordinated bureaucratic initiative from DND’s senior leadership can lead to a debate at the appropriate level and consequently, can lead Cabinet to resolve the issue. The Need for Government Action The end of the Cold War and the disappearance of the associated predictable bipolar world have created new challenges in the field of national security. The main perceived threats to the global world order have shifted from those requiring a powerful deterrent of nuclear weapons and a strong conventional force capability deployed forward, to a more unpredictable and volatile asymmetric threat. International crime, drug trafficking, illegal immigration and terrorism, to name but a few, have now become greater threats in the minds of Canadians than the direct threat to the territory. National security is no longer restricted to defence and foreign policies. It has grown into a much more global issue involving new threats and more importantly, it has raised the level and criticality of the contribution of other departments. The Coast Guard, Immigration, Solicitor General, Justice and others are now necessary partners with complementary missions and can claim a legitimate requirement for resources associated with national security. 3 In the absence of an overarching national security policy framework, DND strategists have had to rely on the 1994 Defence White Paper1 to guide their strategic assessment and, to build their own vision of the needs and expectations of government. Accordingly, the mission of the Canadian Forces as expressed in the Strategy 2020 document remains: “The Defence mission is to defend Canada and Canadians interests and values while contributing to international peace and security”.2 Strategy 2020 recognizes the complexity of the geo-political, military, socio- economic and organizational environment in which the defence policy needs to be implemented. Where the whole plan fails the reality check is at the affordability level. Although Strategy 2020 respects the expectations set in the Defence policy as updated by day-to-day decisions, it also needs to reflect budget decisions to be appropriately carried out. The major lack of resources to implement the policy, as currently stated in the 1994 Defence White Paper, has been widely recognized by DND, Canadians, some pressure groups and even by politicians themselves.3 Recent budgets have paid attention to such concern and budgets 1999 and 2000 have supported a slight increase in defence spending. However, Canadian government has still not been able to provide the necessary level of funding to DND to cope with the challenge. At a time where 1 Canada, Department of National Defence, 1994 Defence White Paper, (Minister of Supply and Services Canada 1994). 2 Canada, Department of National Defence, Shaping the Future of Canadian Defence: A Strategy for 2020, ( Ottawa 1999) p.
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